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Análise Da Constitucionalidade Da Sanção De Inabilitação BRASÍLIA

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Análise Da Constitucionalidade Da Sanção De Inabilitação BRASÍLIA SENADO FEDERAL INSTITUTO LEGISLATIVO BRASILEIRO - ILB NILMARA AGUIAR ALMEIDA O IMPEACHMENT DE DILMA ROUSSEFF: Análise da constitucionalidade da sanção de inabilitação BRASÍLIA 2018 NILMARA AGUIAR ALMEIDA O IMPEACHMENT DE DILMA ROUSSEFF: Análise da constitucionalidade da sanção de inabilitação Trabalho final apresentado para aprovação no curso de pós-graduação lato sensu realizado pelo Instituto Legislativo Brasileiro - ILB como requisito para obtenção do título de Especialista em Análise de Constitucionalidade. Área de concentração: Direito Constitucional. Orientador: Prof. Dr. João Henrique Pederiva. BRASÍLIA 2018 Nilmara Aguiar Almeida O IMPEACHMENT DE DILMA ROUSSEFF: Análise da constitucionalidade da sanção de inabilitação Trabalho apresentado ao Instituto Legislativo Brasileiro – ILB, como pré- requisito para a obtenção de Certificado de Conclusão do Curso de Pós-Graduação Lato Sensu, na área do Direito Constitucional. Orientador: Dr. João Henrique Pederiva Brasília, ____de_______________de 2018. Banca Examinadora Prof. Dr. João Henrique Pederiva Prof. Dr. Luis Fernando Pires Machado “Em política, os aliados de hoje são os inimigos de amanhã”. Nicolau Maquiavel RESUMO O presente trabalho investiga as sanções aplicadas no impeachment da ex-presidente Dilma Rousseff, mais especificadamente, analisa a constitucionalidade da sanção de inabilitação, com foco na sua legalidade e legitimidade, conforme os parâmetros constitucionais e doutrinários. O estudo de casos comparados ocorridos no Brasil utiliza revisão bibliográfica e análise documental e normativa como metodologia e compara as sanções e os respectivos argumentos aplicados aos casos Dilma e Collor. Conclui-se pela aparente inconstitucionalidade da não aplicação da sanção de inabilitação no caso Dilma Rousseff. Palavras-chave: Análise de Constitucionalidade; Decisão; Impeachment; Legitimidade; Sanção de Inabilitação. ABSTRACT The present work investigates the sanctions applied in the impeachment of former president Dilma Rousseff, more specifically, analyzes the constitutionality of the sanction of disqualification, focusing on its legality and legitimacy, according to the constitutional and doctrinal parameters. The study of comparative cases occurred in Brazil uses bibliographic review and documentary and normative analysis as methodology and compares the sanctions and the respective arguments applied to the Dilma and Collor cases. It is concluded by the apparent unconstitutionality of the non- application of the sanction of disqualification in the Dilma Rousseff case. Keywords: Constitutionality Analysis; Decision; Impeachment; Legitimacy; Sanction of Disqualification. SUMÁRIO 1. INTRODUÇÃO ................................................................................................. 7 1.1 Impeachment: histórico e definições ............................................................... 11 1.2 Ponderações sobre a responsabilidade e legitimidade no âmbito do impeachment ............................................................................................................. 13 1.3 Metodologia e estrutura da monografia .......................................................... 16 2. DOS CRIMES DE RESPONSABILIDADE E DAS SANÇÕES IMPOSTAS NA DECISÃO DO IMPEACHMENT DE DILMA ROUSSEFF E FERNANDO COLLOR . 18 2.1. Fundamentos da decisão do impeachment de Dilma Rousseff ...................... 18 2.2. Fundamentos da decisão do impeachment de Collor de Mello ...................... 21 3. ANÁLISE COMPARATIVA DOS ARGUMENTOS UTILIZADOS PARA VOTAÇÃO, E SUAS CONSEQUÊNCIAS SOBRE AS DECISÕES DO IMPEACHMENT DE DILMA ROUSSEFF E COLLOR DE MELLO .......................... 25 3.1 Argumentos para DVS e suas consequências sobre a decisão de não aplicação da sanção de inabilitação no julgamento de Dilma Rousseff .................... 26 3.2 Argumentos e fatos que contribuíram para a decisão que aplicou apenas uma das sanções impostas a Fernando Collor ................................................................. 36 4. CONCLUSÃO ................................................................................................. 41 REFERÊNCIAS ......................................................................................................... 44 APÊNDICE ÚNICO – Proposta De Emenda Constitucional ...................................... 48 ANEXO A – Cópia da decisão do impeachment de Dilma Rousseff ......................... 50 ANEXO B – Resultado da primeira votação do julgamento de Dilma Rousseff ........ 56 ANEXO C – Resultado da segunda votação do julgamento de Dilma Rousseff ....... 57 7 1. INTRODUÇÃO O Impeachment da ex-presidente Dilma Rousseff ainda gera e provoca polêmicas e dúvidas no que diz respeito às sanções não aplicadas ao caso. Um dos maiores questionamentos é a constitucionalidade da sanção de inabilitação, que deixou de incidir por decisão do Plenário do Senado Federal. O tema volta a discussão, por ocasião da ex-presidente Dilma Rousseff ser candidata, pelo Estado de Minas Gerais, ao mesmo Senado que a afastou da função de Presidente da República. Essa candidatura está gerando muitas indagações, sobre a possiblidade do registro de sua candidatura ser barrado pelo Superior Tribunal Eleitoral, tornando- a inelegível, conforme abordado na Folha de São Paulo, em edição do dia 7 de julho de 2018, vejamos: Candidatura de Dilma está ameaçada, dizem especialistas – Discussão sobre fatiamento do impeachment e inelegibilidade da petista deve chegar ao Supremo. “A candidatura está relevantemente ameaçada porque certamente será impugnada, essa impugnação chegará ao plenário do Supremo e ali hoje não há como se ter uma previsibilidade do que vai acontecer”, diz o advogado eleitoral e professor da PUC-SP Carlos Gonçalves Júnior.1 Diante da questão em análise, com sustentação em nosso regulamento normativo e jurisprudencial, doutrinadores, juristas e estudiosos do meio acadêmico demonstram seus posicionamentos e considerações que embasam este estudo. O Professor Paulo Brossard em sua obra explana que: A Constituição assim prescreve: “não poderá o Senado Federal impor outra pena que não seja a perda de cargo com inabilitação, (Constituição de 1988, art. 52, parágrafo único: “…limitando-se a condenação, que somente será proferida por dois terços dos votos do Senado Federal, à perda do cargo, com inabilitação, por oito anos, para o exercício da função pública, sem prejuízo das demais sanções judiciais cabíveis”.) cinco anos, para o exercício de qualquer função pública, sem prejuízo da ação da justiça ordinária”. Se crime [imputação na esfera penal] não existir, o problema se esgota no âmbito legislativo, com a aplicação tão somente da pena política. Em havendo crime, na justiça ordinária se instaura ação penal contra o que foi condenado 1 LINHARES, Carolina. Candidatura de Dilma está ameaçada, dizem especialistas. In: Folha de S. Paulo, Belo Horizonte, 7 jul.2018. Disponível em: <https://www1.folha.uol.com.br/poder/2018/07/candidatura-de-dilma-esta-ameacada-dizem- especialistas.shtml>. Acesso em: 11 jul. 2018. 8 na jurisdição política, permanecendo o impeachment como simples processo político e política, tão somente, a sanção aplicada.2 Assim, caso fosse observada a interpretação citada, não haveria possibilidade da mencionada candidatura. No segundo parágrafo da citação, Brossard ao falar de “crime”, faz referência àqueles chamados “crimes de responsabilidade”, que estão descritos na Lei nº 1.079/50, chamados crimes políticos, que são solucionados em âmbito legislativo, com a aplicação da “imputação jurídica na esfera e com fundamento político”. No entanto, o autor também chama atenção às demais formas de responsabilização detalhadas na Seção 1.1 deste trabalho, que estão no âmbito da justiça ordinária, momento em que são instauradas ações para as demais jurisdições. Sobre a não aplicação da sanção de inabilitação no impeachment da ex- presidente Dilma Rousseff, Fabiane Pereira de Oliveira Duarte, ex-secretária geral da Presidência do Supremo Tribunal Federal e Chefe da Assessoria Especial da Presidência do Senado, para tratar do impeachment, e Luiz Fernando Bandeira de Mello, secretário-geral da Mesa do Senado Federal e escrivão do processo de impeachment, explicam que o plenário deliberaria, quanto a possibilidade de cometimento de crime (texto principal), e, logo em seguida, sobre a aplicação ou não da pena de perda de cargo (texto destacado); “[...]. Em outras palavras, a divisão em duas votações era a forma prevista para a deliberação na lei especial (que nunca teve sua recepção contestada), além de haver-se tornado obrigatória por força da norma regimentar”.3 O artigo da Lei 1.079/50 a que Fabiane Duarte e Bandeira de Mello fazem referência é o art. 68 da Lei do Impeachment.4 2 BROSSARD, Paulo. O impeachment: aspectos da responsabilidade política do Presidente da República. 2ª edição. São Paulo: Saraiva, 1992, p. 72-73. 3 DUARTE, Fabiane Pereira de Oliveira; MELLO, Luiz Fernando Bandeira. Impedimento e inabilitação política são penas principais e independentes. In: Revista Consultor Jurídico, 22 de setembro 2016. Disponível em: <https://www.conjur.com.br/2016-set-22/impedimento-inabilitacao-politica-sao-penas- principais-independentes>. Acesso em: 4 jul. 2018 4 BRASIL. Lei nº 1.079, de 10 de abril de 1950. Define os crimes de responsabilidade e regula o respectivo processo de julgamento. Disponível em: <http://www.planalto.gov.br/ccivil_03/LEIS/L1079.htm> Acesso em: 28 mar. 2017. Art. 68 da Lei nº 1.079, de 10 de abril de 1950: “O julgamento será feito, em votação nominal
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